www.uwsp.edu/cnr-ap/clue/
December 2013
Planning and Zoning for Local Food Systems
Food Production
Center for Land Use Education Fact Sheet
We rely on our food system to produce the food we eat every day. Yet we don’t
always realize the complex web of rela onships, regula ons, and infrastructure
that goes into our food system. The food system includes everything from food
produc on, processing, and distribu on, to access, consump on, and waste
recovery.
Even though agriculture has become increasingly industrialized and globalized
since World War II, interest in local food systems—that is, systems that produce
food locally to meet local needs—has grown over the last decade. There is no
consensus for the defini on of “local”, but some common defini ons of local
include within 100 miles or within the state. Local food systems can improve
access to fresh, healthy food; contribute to the local economy; and reduce energy,
waste, and environmental degrada on. In addi on, public demand for local food
at farmers markets, grocery stores, and other ins tu ons has grown, as well as
community interest in food produc on at home or in community gardens.
Consumers o en associate local food with other characteris cs, such as
environmentally sustainable produc on and distribu on.1 This fact sheet will
address the first aspect of the food system: produc on. It will focus primarily on
the availability of land for food produc on near or within urban areas. Some types
of agriculture are more suitable for urban areas, including organic or low pes cide
produc on intended for sale to local residents.2 One study es mated that 56
percent of the popula on in the Midwest could be supplied with a balanced diet
of food produced within five miles.3
Local Food Farms
The majority of local food produc on occurs on farms. Generally we think of
farming taking place in rural areas, but 39 percent of US farms are located
in metropolitan areas.4 In Wisconsin, there are over 78,000 farms and 15
million acres of land in produc on.5 Of those, most are commodity farms
producing crops and livestock for trade in na onal and interna onal
markets.6 The exact number of local food farms (or those farms serving
local food needs) in Wisconsin is unknown, but an es mated 5 percent of
farms na onally report local food sales.7
Approximately
5 percent
of farms
participate in
their local food
system
1
In Wisconsin, 6,243 farms sell direct to
consumers through farmer’s markets,
community-supported agriculture, or other
outlets.8 In addi on, many local food farms
sell through intermediated markets such
as regional distributors, grocery stores,
restaurants, or other retailers.9 Local food
farms are more likely to be smaller in
size, family-owned, and located in or near
metropolitan coun es. As a result, local
food farms may uniquely experience the
pressures of development. Because of
their size, local food farms can respond to
local needs but may be limited by scale. In
addi on, the producers are o en younger
and have more formal educa on. As
demand for local food grows, the number
and/or size of local food farms may also
need to grow to meet that demand.
Many factors affect the types of products
that producers grow and raise, such
as climate, soil, cultural and personal
preferences, and marke ng and distribu on
networks. Many local food farms grow a
wider variety of products than commodity
farms. Most local food farms are vegetable,
fruit, and nut farms, with a smaller
percentage of local food farms producing
other field crops or livestock.10 Local food
farms o en dis nguish themselves by
selling niche products, such as organics, or
heirloom plant varie es or animal breeds.
This allows them to generate higher gross
sales per acre from smaller farms.11 For
that reason, some local food farms may
use less land than other types of farming.
Most local food farms are located on private
land, though a small number of local food
farms are operated by nonprofits on publicly
owned land in U.S. ci es.12
Non-Farm Food Produc on
In addi on to farm produc on, some local
produc on occurs off farm. For example,
many households grow food for their
own use. An es mated 31 percent of
households par cipate in food gardening,
mainly at their own homes but also at
friends’, neighbors’, or rela ves’
homes, or at community
Approximately
gardens.13 There are over 100
31 percent
documented community gardens
of households
in Wisconsin, and the list is
14
growing. In addi on to gardens,
participate in
some communi es are also
food gardening
star ng community orchards.15
Many communi es also have
volunteer programs to grow
food for people experiencing poverty, such
as food pantry or church gardens, or Plant
A Row for the Hungry. These types of nonfarm food produc on sites can be located
on public or private land. For example, many
schools are star ng gardens for student
educa on and cafeteria use.
“Traditionally planners
have attempted to
draw their lines
between the urban and
the rural, essentially
creating areas of
food production and
food consumption.
However, this
dichotomy
often proves to be an
oversimplification and
may be harmful to the
socially desirable goal
of sustainability.”
Hemert and Holmes16
2
Planning
There are several components of community planning in which local governments can
consider and promote local food produc on.
Build rela onships with food system
partners in the community and region
involved in local food produc on on farms
and in your community. This may include:
•
Small and mid-size producers
•
Producer groups
•
Nonprofits
•
Ins tu ons
Determine the best way to engage
partners on an ongoing basis to address
food produc on needs, such as through a
food policy council, a standing or ad hoc
commi ee, or regular communica on
with appropriate staff.
Gather data on local food produc on.
For example:
•
Work with community and university
partners to conduct a food system
assessment that determines the
boundary’s of the local foodshed.17
•
Assess the pressure of development
on agricultural land used for local food
produc on. Conduct a land inventory
assessment to iden fy public and
private land suitable for local food
produc on.18
•
Par cipate in regional efforts to
determine the land requirements,
producers, and amount and types of
product necessary to feed the local
popula on.19
Address local food produc on
in community plans including
comprehensive, farmland preserva on,
sustainability, and other plans.20,21
•
Develop specific and measurable goals
for local food produc on, considering
both farm and non-farm produc on.
•
Iden fy ways to reduce barriers to
local food produc on. Review zoning
code. Provide in-kind or financial
support for programs that enable area
farmers to serve the local food system.
•
Recognize the benefits of food
produc on in close proximity to urban
centers. Iden fy and address areas
suitable for long-term food produc on
in your county’s farmland preserva on
plan.
•
Promote mixed use development
that includes neighborhood-level
food produc on through home and
community gardens and orchards,
and raising micro-livestock such as
chickens or bees.22
Model Comprehensive Plan
Goal and Objec ves
Comprehensive plan goals iden fy
community priori es and set the direc on
for future ac on. Include local food
produc on in appropriate elements:
Goal: Support local food producƟon that
strengthens the local food system
1. Provide or support networking and
educa onal opportuni es for local
food producers and other food
system partners
2. Address farm and non-farm local
food produc on in the zoning code
3. Support beginning local food farmers
by providing access to resources,
such as affordable farmland
4. Provide food producers with market
analysis to help them access local
markets and meet local food needs
3
Regula on
Local regula on affec ng food produc on primarily occurs through zoning and farmland
preserva on. There are several areas in which local food produc on could be considered.
Educate local government officials, staff,
and the public about food produc on
regula ons. Provide the informa on on
local government websites.
Specifically define components of local
food produc on in the zoning code.23
Include both agricultural land such as
farms and community gardens and
accessory structures such as greenhouses,
hoop houses, raised beds, fish tanks,
chicken coops, rainwater collec on
systems, etc.24,25
Review the zoning code and reduce
unnecessary barriers to food produc on
in each district (e.g., residen al,
commercial, open space, and mixed use).
•
•
Dis nguish between intensive, and
less intensive, food produc on.26
A farm might make sense as a
condi onal use in some districts,
whereas a community garden might
make sense as a permi ed use.
•
Allow micro-livestock in select districts
with appropriate limita ons (e.g.,
allow hens but not roosters). Common
regula ons address number and
type of animals, allowable zones,
site specifica ons such as lot size
and setbacks and types of accessory
structures, slaughtering, and
disposal.29,30 Most zoning ordinances
do not address slaughtering, except
to note that it is banned. However,
slaughtering is a means of disposal
Permit home gardens in residen al
districts and review landscaping
requirements in all districts. Include
regula ons that balance edible
landscaping with maintenance
standards and user rules.32
In addi on to farmland preserva on in
general, consider ways to preserve or
encourage food produc on in par cular.
For example:
•
Create agricultural conserva on
easements through local government
or an area land trust that are specific
to local food farms, community
gardens, and orchards.33
•
Support programs that provide
resources to beginning local
food farmers. Learn about ways
municipali es, ins tu ons, and land
trusts can lease land to farmers.34
Consider crea ng districts specifically
for food produc on, such as urban
agriculture districts in urban areas,27 or
local food produc on districts on the
development fringe.28
Use appropriate regula on, rather than
outright bans, to address local food
produc on nuisances. For example,
•
and an important cultural prac ce
to some immigrant and refugee
popula ons that can be regulated.31
Model Local Food
Produc on District
Local food produc on districts address
agriculture on the development fringe.
This district is focused on local, rather
than commodity, food produc on.
•
Permi ed uses include produce farms,
nurseries, greenhouses, community
supported agriculture, community
gardens, and so forth.
•
Provisional uses include animal
husbandry, residen al food
processing, and agricultural retail.
•
Condi onal uses include aquaculture,
schools, community buildings, etc.
4
Examples in Wisconsin
Below are examples of planning and zoning ac vi es related to local food produc on.
Eau Claire Comprehensive Plan - Health Chapter
h p://bit.ly/1hJcW8G
In August 2013 the city of Eau Claire approved adding a new health chapter to their
comprehensive plan. The chapter has six objec ves, including food and nutri on. Below are
a few of the policies related to local food produc on that are included:
•
Increase the number of neighborhood and community gardens in public spaces.
•
Consider allowing limited animal husbandry while protec ng against possible
associated nuisances.
•
Consider crea ng a master plan for the community’s food system.
Urban Agriculture in Appleton
www.appleton.org/municipal_code/
In 2012 the city of Appleton updated their zoning code to include
urban agriculture. Defini ons were created for community gardens
and urban farms. Neither defini on includes micro-livestock, which is
being discussed separately. In addi on, the city added a new special use
permit for urban farms, which are allowed in several districts (including
residen al). This addi on was in response to nonprofit Riverview
Gardens’ desire to redevelop an urban farm on an old golf course.
A er submi ng a special use applica on that included an urban farm
management plan, Riverview Gardens was approved to develop the farm
on the 72-acre site, roughly a third of which will be used for intensive food produc on.
Portage County Zoning Ordinance
www.co.portage.wi.us/ordinances/Chapter%207.pdf
Although considered a rural county, Portage County did not allow chickens in residen al
districts un l 2010 when a group of residents encouraged the county to pass an ordinance.
The Portage County Zoning Ordinance includes specific provisions for keeping chickens
under Sec on VI. Up to 12 chickens are allowed in the R1, R2, and R5 residen al zoning
districts. Roosters are prohibited and no slaughtering or butchering is allowed on site. The
chicken coop must be 50 feet from any adjoining property line or well, and 100 feet from
any neighboring residence.
Conclusion
Produc on of food for local and regional consump on represents a small, but growing,
segment of Wisconsin food produc on. Communi es that engage in planning and zoning
for their local food system may be be er prepared to address produc on issues related to
land use.
WriƩen by Kristy SeBlonka and Anna Haines, Center for Land Use EducaƟon. 2013. Reviewed by Lynn
Markham and Becky Roberts, CLUE; Erin Peot, Center for Community and Economic Development; Carrie
Edgar, Dane County UW-Extension; and Teresa Engel, Department of Agriculture, Trade, and Consumer
ProtecƟon. PublicaƟon available on CLUE’s website: www.uwsp.edu/cnr-ap/clue. Photo credits: Sunny Sky
Farm (front) and Riverview Gardens (above).
5
References
1
Mar nez, Steve, et al. May 2010. Local Food Systems: Concepts, Impacts, and Issues. USDA Economic Research Report 97.
2
Markham, Lynn. Farming Subdivisions: Problema c or Promising? Land Use Tracker. Winter 2007.
3
The study es mated the “per capita” cropland requirement in the Midwest, taking into considera on the distance between popula on centers
and cropland, varia ons in yield among 40 crops grown in the Midwest, and targeted dietary recommenda ons. See Hu, Guiping, Wang, Lizhi,
Arendt, Susan, and Randy Boeckenstedt. Fall 2011. “An Op miza on Approach to Assessing the Self-Sustainability Poten al of Food Demand in the
Midwestern United States.” Journal of Agriculture, Food Systems, and Community Development. Volume 2, Issue 1.
4
Metropolitan areas have an urban popula on center of over at least 50,000.
5
Na onal Agricultural Sta s cs Services. 2011 State Agriculture Overview: Wisconsin.
6
While the term “commodity” has been used more broadly in recent years, the authors use it in its tradi onal sense in regards to trade in na onal
and interna onal markets.
7,9,10,11
Low, Sarah A. and Stephen Vogel. November 2011. “Direct and Intermediated Marke ng of Local Foods in the United States.” USDA Economic
Research Report 128.
8
USDA Census of Agriculture. 2007 Wisconsin Data. Available at www.agcensus.usda.gov/Publica ons/2007/Full_Report/Volume_1,_Chapter_1_
State_Level/Wisconsin/.
12
For an example, see the Incubator Farm Project in North Carolina at www.cefs.ncsu.edu/whatwedo/foodsystems/incubatorfarmproject.html.
13
Na onal Gardening Associa on. 2009.
14
UW-Extension. FEEDS website. Accessed at h p://feeds.uwex.edu/index.cfm.
15
See Ames, Guy. May 2013. Community Orchards. Available at h ps://a ra.ncat.org/publica on.html#hor cultural.
16
Hemert, James van, and Joe Holmes. 2007. Pu ng Sustainable Community Development in Context: A Look at the Food System. Rocky Mountain
Land Use Ins tute.
17
Freedgood, Julia, Pierce-Quiñonez, Marisol, and Kenneth A. Meter. December 2011. Emerging assessment tools to inform food system planning.
Journal of Agriculture, Food Systems, and Community Development. p. 86-88.
18
Most Wisconsin agricultural land is for commodity crops. See page 4 in the Center for Land Use Educa on’s Wisconsin Land Use Megatrends
Agriculture, available at www.uwsp.edu/cnr-ap/clue/Pages/publica ons-resources/LandUseMegatrends.aspx.
19
An example of a land use assessment that considers a regional diet is the Western Lake Superior Region diet. More informa on can be found at
www.superiorfoodweb.org/LAFS/HFHL_FINALREPORT.pdf.
20
See ac ons by component in Roberts, Rebecca. Planning for Community Food Systems. Land Use Tracker. Winter 2007.
21
Find a link to your community’s comprehensive plan on the Department of Administra on’s website: h p://bit.ly/1fVZaLP.
22
Mixed use development is generally thought of as a mix of residen al and commercial, but can be broadened to agriculture, recrea on, and other
uses.
23
ChangeLab Solu ons provides some defini ons for urban agriculture. See Wooten, Heather (ChangeLab Solu ons). October 2011. Seeding the City:
Land Use Policies to Promote Urban Agriculture.
24,27,33
Harvard Law School Food Law and Policy Clinic. July 2012. Good Laws, Good Food: Pu ng Local Food Policy to Work for Our Communi es.
25
Obtain a copy of the local zoning code from your local municipality. Most Wisconsin ci es, villages, and coun es have adopted general zoning.
Towns may par cipate in county zoning, or have their own general zoning if the county does not. See Roberts, Rebecca and Lynn Markham. 2007.
Planning Implementa on Tools: Zoning Ordinances. CLUE.
26
See Mukherji, Nina, and Alfonso Morales (American Planning Associa on). March 2010. Prac ce Urban Agriculture. Zoning Prac ce, Issue 3.
28
Ross, Brian (CR Planning, Inc.). 2008. Local Food Networks. Updated Model Ordinances for Sustainable Development. MPCA.
29
Typical types of micro-livestock include chickens, bees, and goats. See Bouvier, Jaime (American Planning Associa on). April 2013. Prac ce Urban
Livestock. Zoning Prac ce. Issue 4.
30
Butler, William. February 2012. Welcoming Animals Back to the City: Naviga ng the Tensions of Urban Livestock through Municipal Ordinances.
Journal of Agriculture, Food Systems, and Community Development. Volume 2, Issue 2.
31
See Burlington Urban Agriculture Task Force Report for recommenda ons for a slaughtering ordinance, including how to manage waste, disposal,
and sitelines. Available at h p://burlingtonfoodcouncil.org/our-projects/ua /.
32
Ross, Brian (CR Planning, Inc.). 2008. Landscaping and Maintenance of Vegeta on. Updated Model Ordinances for Sustainable Development.
Minnesota Pollu on Control Agency (MPCA).
34
To learn more, see Land for Good. Leasing Land to Farmers: A Handbook for New England Land Trusts, MunicipaliƟes, and InsƟtuƟons.